Preliminary Report

BRITISH COLUMBIA

Electoral Boundaries Commission

PRELIMINARY REPORT

August 15, 2007 COVER PHOTO LISTING

Top row – left to right Kinney Lake, Mount Robson Provincial Park, B.C. Richmond, B.C. Coastal B.C. Parliament Buildings, Victoria, B.C.

Second row – left to right Coastal B.C. Coquihalla Highway, B.C. Unknown neighbourhood Saanich Inlet, Vancouver Island, B.C.

Third row – left to right Mount Assiniboine Lodge, B.C. Stanley Park, Vancouver, B.C. Dawson Creek, B.C. Along the Fraser River, B.C.

Bottom row – left to right Vaseux Lake, B.C. Vancouver, B.C. Nelson, B.C. Unknown B.C. valley

Vaseux Lake photo: Gunter Marx Stock Photos

Library and Archives Canada Cataloguing in Publication Data British Columbia. Electoral Boundaries Commission. Preliminary report to the Legislative Assembly of British Columbia

ISBN 0–7726–5632–0 ISBN 978–0–7726–5632-2

1. British Columbia. Legislative Assembly – Election Districts – Planning. 2. British Columbia. Electoral Boundaries Commission. 3. Election districts – British Columbia – Planning. 4. Election districts – British Columbia. 5. Redistribution (Election law) – British Columbia. I. Title. II. Title: Electoral Boundaries Commission preliminary report to the Legislative Assembly of British Columbia.

JL433.B74 2007 328.711’07345 C2006–960186–0

The Honourable Bill Barisoff Speaker of the Legislative Assembly of British Columbia Room 207 Parliament Buildings Victoria, British Columbia V8V 1X4

Honourable Speaker:

Preliminary Report of the British Columbia Electoral Boundaries Commission

We are pleased to submit our Preliminary Report, as required by section 10(1) of the Electoral Boundaries Commission Act, R.S.B.C. 1996, c. 107, as amended by section 4(3)(a) of the Electoral Boundaries Commission Amendment Act, 2005, S.B.C. 2005, c. 30.

Yours very truly,

The Hon. Mr. Justice Bruce I. Cohen Commission Chair

Stewart Ladyman Commissioner

Harry Neufeld Chief Electoral Officer for British Columbia Commissioner

Table of contents

Letter of transmittal

1 PART 1 – EXECUTIVE SUMMARY 1 Taof b l e

2 PART 2 – THE ROLE OF THE COMMISSION 9 c on te n ts A. Introduction 10 1. The Electoral Boundaries Commission’s task 10 2. A new commission after every second provincial election 11 3. The dual mandate 11 a. The current electoral system 11 b. The proposed BC-STV electoral system 12 4. The purpose of this Preliminary Report 13 B. The Commission 13 1. Our team 13 a. The commissioners 13 b. Staff 14 c. Counsel 14 d. External technical staff 14 2. Our activities 15 3. Our consultations with the public 16 a. Process 16 b. Where we went 17 c. What we heard 17 d. How we considered people’s views and suggestions in our proposals 19 4. Our goals: independence, transparency and accessibility 19 3 PART 3 – THE HISTORY OF SETTING ELECTORAL BOUNDARIES FOR BRITISH COLUMBIA’S LEGISLATIVE ASSEMBLY 21 A. Introduction 22 B. The Angus Commission (1966) 23 Taof b l e C. The Norris Commission (1975) 24 D. The Eckardt Commission (1978) 24

c on te n ts E. The Warren Commission (1982) 25 F. The McAdam Commission (1984) 27 G. The Fisher Commission (1988) 28 H. The Wood Commission (1999) 30

4 PART 4 – THE LEGAL FRAMEWORK 33 A. British Columbia Legislation 34 1. The current single member plurality (SMP) system 34 a. The area, boundaries and names of the electoral districts 35 b. Increasing the number of electoral districts 35 2. The proposed single transferable vote (BC-STV) system 35 3. Our commission only proposes 36 B. Legislation in Other Canadian Jurisdictions 36 C. Court Decisions 36 1. The Supreme Court of Canada’s interpretation of the right to vote 36 2. Applying the Supreme Court of Canada’s interpretation provincially 39 D. Summary of Legal Principles Governing Us 39

5 PART 5 – “EFFECTIVE REPRESENTATION” AND “VERY SPECIAL CIRCUMSTANCES” 41 A. Our Understanding of “Effective Representation” 42 B. Our Approach to “Very Special Circumstances” 43

6 PART 6 – DETERMINING ELECTORAL DISTRICT POPULATIONS 47 A. Calculating the Provincial Electoral Quotient 48 1. Census data 49 2. Voter count data 49 B. The Changing Face of British Columbia 50 7 PART 7 – REGIONAL GROUPINGS 51 A. British Columbia’s Regions 52 B. Previous Commissions’ Regions 53 C. Our Regional Groupings 54 Taof b l e

8 PART 8 – ELECTORAL DISTRICTS AND MLAs 57 A. Legislation 58 B. History 59 c on te n ts C. What People Told Us 60 D. How B.C. Compares to Other Provinces and Territories 60 E. Discussion 61

9 PART 9 – PROPOSED SINGLE MEMBER PLURALITY BOUNDARIES 63 A. A Description of the SMP Electoral System 64 B. The Process 64 1. The steps we went through in developing our proposed SMP electoral districts 64 2. Using updated population projections 67 C. The North 68 1. The evolution of the North’s electoral districts 68 2. Our analysis of the North’s electoral districts 76 a. The West 77 b. The Peace 78 c. The Central North 80 3. “Protecting northern representation” 82 4. Conclusion 84 D. The Cariboo-Thompson 95 1. The evolution of the Cariboo-Thompson electoral districts 95 2. Our analysis of the Cariboo-Thompson electoral districts 102 3. Conclusion 106 E. The Okanagan 114 1. Evolution of the Okanagan electoral districts 114 2. Our analysis of the Okanagan electoral districts 121 3. Conclusion 123 F. The Columbia-Kootenay 133 1. Evolution of the Columbia-Kootenay electoral districts 133 2. Our analysis of the Columbia-Kootenay electoral districts 141 3. Conclusion 142 Taof b l e G. The Fraser Valley 149 1. Evolution of the Fraser Valley electoral districts north of the river 149 2. Evolution of the Fraser Valley electoral districts south of the river 157 c on te n ts 3. Our analysis of the Fraser Valley electoral districts 165 4. Conclusion 168 H. The Tri-Cities Area 181 1. Evolution of the Tri-Cities electoral districts 181 2. Our analysis of the Tri-Cities electoral districts 188 3. Conclusion 189 I. Surrey 196 1. Evolution of Surrey’s electoral districts 196 2. Our analysis of Surrey’s electoral districts 204 3. Conclusion 205 J. Richmond and Delta 216 1. Evolution of the Richmond and Delta electoral districts 216 2. Our analysis of the Richmond and Delta electoral districts 222 3. Conclusion 223 K. Burnaby and New Westminster 231 1. Evolution of the Burnaby and New Westminster electoral districts 231 2. Our analysis of the Burnaby and New Westminster electoral districts 238 3. Conclusion 239 L. Vancouver 247 1. Evolution of Vancouver’s electoral districts 247 2. Our analysis of Vancouver’s electoral districts 256 3. Conclusion 258 M. The North Shore 273 1. Evolution of the North Shore electoral districts 274 2. Our analysis of the North Shore electoral districts 280 3. Conclusion 281 N. Vancouver Island and South Coast 288 1. Evolution of the Vancouver Island and South Coast electoral districts 288 2. Our analysis of the Vancouver Island and South Coast electoral districts 297 3. Conclusion 301 10 PART 10 – PROPOSED BC-STV ELECTORAL SYSTEM BOUNDARIES 319 A. A Description of the Proposed BC-STV Electoral System 320 1. Citizens’ Assembly on Electoral Reform 320 2. Key elements of the proposed BC-STV electoral system 320 3. 2005 referendum on the proposed BC-STV electoral system 321 Taof b l e 4. The role of this Electoral Boundaries Commission 322 5. To learn more about BC-STV 323

B. Combining SMP Electoral Districts to Create BC-STV Electoral Districts 323 c on te n ts C. Reasons for Our Proposed District Magnitudes 324 D. Our Proposals for BC-STV Electoral Boundaries 326 1. The North 326 2. The Cariboo-Thompson 327 3. The Okanagan 327 4. The Columbia-Kootenay 328 5. The Fraser Valley 328 6. Tri-Cities 329 7. Surrey 329 8. Richmond and Delta 330 9. Burnaby and New Westminster 330 10. Vancouver 330 11. North Shore 331 12. Vancouver Island and South Coast 331

11 PART 11 – LOOKING AHEAD 353 A. Delivery of this Preliminary Report 354 B. Public Hearings 354 C. Dates and Locations of Our Public Hearings 354 D. Registration for Presenters 355 E. Written Submissions 355 F. The Commission’s Final Report 355 G. The Role of the Legislative Assembly 356 12 PART 12 – DESCRIPTIONS OF PROPOSED ELECTORAL BOUNDARIES 357

13 PART 13 – ADDITIONAL INFORMATION 361 Taof b l e List of Maps and Tables 362 – 373 Appendices 374 – 452 List of Staff and Suppliers 453 c on te n ts